Board of County Commissioners of Douglas County, Kansas

BOARD OF COUNTY COMMISSIONERS OF DOUGLAS COUNTY, KANSAS

ADDRESSING THE COMMISSION: Public comment will be taken for each regular agenda item as each item is discussed. Individuals will be limited to one comment per agenda item. Individuals are asked to come to the microphone, sign in, and state their name. We ask that you sign in so that we can get the spelling of your name correct in the minutes of the meeting. Speakers should address all comments/questions to the Commission.

WEDNESDAY, FEBRUARY 20, 2019 4:00 p.m. -Consider approval of the minutes for February 6 and February 13, 2019.

CONSENT AGENDA (1) (a) Consider approval of Commission Orders; (b) Consider approval a County Resolution granting a cereal malt beverage license to The Clinton Store located at 598 N 1190 Road. (Clerk’s Office) (c) Consider approval a County Resolution granting a cereal malt beverage license to The Poor Farm Restaurant located at 598 N 1190 Road. (Clerk’s Office) (d) Consider awarding construction contract for bridge deck rehabilitation, Bridge Nos. 17-27N-10.00E and 17.30N-10.81E for Project No. 2019-70 (Keith Browning); (e) Consider awarding construction contract for bridge superstructure painting, Bridge Nos. 02.00N-14.80E and 03.06N-10.00E for Project No. 2018-52. (Keith Browning); (f) Adopt resolution to waive GAAP requirements for K.S.A. 75-1120a(a) for FY2019 (Brooke Sauer); and (g) Accounts Payable REGULAR AGENDA (2) Approve an increase to the Douglas County District Court Budget for a Programmer/Analyst position. (Linda Koester-Vogelsang);

(3) Hold a public hearing to consider using the construction manager at risk project delivery method for the Douglas County Correctional Facility expansion.

(4) Hold a public hearing to consider using the construction manager at risk project delivery method for the Tier 2 and Tier 3 Behavioral health housing projects.

(5) Approve an Addendum to Standard Form of Agreement between owner and architect with the Treanor HL for the Tier II and Tier III Housing Projects at the Douglas County Recovery Campus (Jill Jolicoeur)

(6) Discuss open space issues. (Helen Schnoes)

(7) Appointments: • Board of Zoning Appeals (1) position open 12/31/18 • Building Code of Appeals Board (1) position open 12/16 (plumber) • Community Corrections Advisory Board (2) positions open (General/Social Services) • Criminal Justice Coordinating Council (1) position (District 1 Commissioner Appointee) • Douglas County Fair Board (1) position: Kanwaka • Douglas County Senior Resource Center Board of Directors: (2) positions • Fire District No. 1: (2) positions • Fire District No. 4: (1) position • Food Policy Council (9) positions with restructure of council • JAAA Advisory Council (2) positions • JAAA Board of Directors (2) positions • Heritage Conservation Council: (1) position (Architect) • Lawrence-Douglas County Advocacy Council on Aging (10) open positions • Lawrence-Douglas County Health Board: (1) position

(8) General Public Comment will be at the end of each meeting with a limit of one comment per person and keep their comments brief. Individuals may not give unused time to other speakers. As a general practice, the Commission will not discuss/debate these items, nor will the Commission make decisions on items presented during this time, rather they will refer the items to staff for follow up, if necessary. (9) Committee Reports

(10) Commissioner and/or Administrator Miscellaneous RECESS RECONVENE 6:00 p.m. (11) Douglas County Correctional Facility (DCCF) expansion update. (Sarah Plinsky/Gary Bunting)

(12) Adjourn

WEDNESDAY, FEBRUARY 27, 2019 WEDNESDAY, MARCH 6, 2019 4:00 p.m. – WORK SESSION -Behavioral Health Peer Fellows Project

5:30p.m. - MEETING SP-19-00011: Site plan for minor changes to plans approved with Conditional Use Permit, CUP-15- 00613, for Calcio Village an Athletic Field complex for youth soccer on approximately 80 acres, located at the intersection of E. 1750 Road and N. 1300 Road. Submitted by Jambars Futbol Club Inc./Calcio Village, LLC, on behalf of John Pendleton for Lorita H. Pendleton, Trustee, property owner of record. (Mary Miller is the Planner)

SP-18-00583: Site plan for construction of a 19,200 square foot School with gymnasium and classrooms and associated parking, on approximately 8.49 acres located southeast of the intersection of N. 968 Road and County Route 1045/E. 1296 Road. Submitted by Blue Mountain Capital Inc. for Veritas Christian School Society, property owner of record. (Mary Miller is the Planner) WEDNESDAY, MARCH 13, 2019 WEDNESDAY, MARCH 20, 2019 4:00 p.m. - WORK SESSION -2020 Budget Preparations

5:30 p.m. - MEETING -Agritourism Tier 1 application for Winter Schoolhouse (Tonya Voigt) -TBU for a temporary asphalt plant for Bettis Asphalt (Tonya Voigt)

WEDNESDAY, MARCH 27, 2019 4:00 p.m. - WORK SESSION -Private Road/Cross Access Easement Discussion

WEDNESDAY, APRIL 3, 2019 -Proclamation for “National Service Recognition Day” (Linda Brandenburger)

WEDNESDAY, OCTOBER 2, 2019- cancelled

Note: The Douglas County Commission meets regularly on Wednesdays at 4:00 P.M. for administrative items and/or 6:00 P.M. for public items at the Douglas County Courthouse. Specific regular meeting dates that are not listed above have not been cancelled unless specifically noted on this schedule.

DOUGLAS COUNTY PUBLIC WORKS PROJECT 2019-70/BID NO. 19-F-0003 DESCRIPTION: BRIDGE DECK MILL, PATCH, AND OVERLAY 17.27N-10.00E & 17.30N-10.81E BID TABULATION February 13, 2019

Bridge 17.27N-10.00E ENGINEER'S ESTIMATE Comanche Construction Inc PCI Roads LLC Bettis Asphalt ITEM NO. BID ITEM UNIT QTY UNIT PRICE TOTAL UNIT PRICE TOTAL UNIT PRICE TOTAL UNIT PRICE TOTAL 1 Mobilization L.S. 1 $15,000.00 $15,000.00 $10,200.00 $10,200.00 $17,426.00 $17,426.00 $16,000.00 $16,000.00 2 Machine Preparation(1") S.Y. 375 $25.00 $9,375.00 $25.50 $9,562.50 $6.00 $2,250.00 $20.00 $7,500.00 3 Area Prepared for Patching S.Y. 60 $300.00 $18,000.00 $295.00 $17,700.00 $290.00 $17,400.00 $240.00 $14,400.00 4 Area Prepared for Patching (Full Depth) S.Y. 10 $350.00 $3,500.00 $368.75 $3,687.50 $362.50 $3,625.00 $300.00 $3,000.00 5 Portland Cement Concrete Overlay C.Y. 375 $100.00 $37,500.00 $99.00 $37,125.00 $112.50 $42,187.50 $112.00 $42,000.00 6 Material for Portland Cement Concrete Overlay (Set) C.Y. 1 $175.00 $175.00 $175.00 $175.00 $175.00 $175.00 $175.00 $175.00 7 Reinforcing Steel (Gr.60) (Repair) (Set) LBS 1 $2.00 $2.00 $2.00 $2.00 $2.00 $2.00 $2.00 $2.00 8 Traffic Control L.S. 1 $5,000.00 $5,000.00 $2,115.00 $2,115.00 $2,000.00 $2,000.00 $2,000.00 $2,000.00 SUB TOTAL $88,552.00 $80,567.00 $85,065.50 $85,077.00

Bridge 17.30N-10.81E ITEM NO. BID ITEM UNIT QTY UNIT PRICE TOTAL UNIT PRICE TOTAL UNIT PRICE TOTAL UNIT PRICE TOTAL 1 Mobilization L.S. 1 $20,000.00 $20,000.00 $11,400.00 $11,400.00 $18,426.00 $18,426.00 $20,000.00 $20,000.00 2 Machine Preparation (1") S.Y. 310 $25.00 $7,750.00 $22.65 $7,021.50 $6.00 $1,860.00 $20.00 $6,200.00 3 Area Prepared for Patching S.Y. 70 $300.00 $21,000.00 $295.00 $20,650.00 $290.00 $20,300.00 $240.00 $16,800.00 4 Area Prepared for Patching (Full Depth) S.Y. 5 $350.00 $1,750.00 $368.75 $1,843.75 $362.50 $1,812.50 $300.00 $1,500.00 5 Portland Cement Concrete Overlay C.Y. 310 $100.00 $31,000.00 $99.00 $30,690.00 $115.00 $35,650.00 $112.00 $34,720.00 6 Material for Portland Cement Concrete Overlay (Set) C.Y. 1 $175.00 $175.00 $175.00 $175.00 $175.00 $175.00 $175.00 $175.00 7 Reinforcing Steel (Gr. 60) (Repair) (Set) LBS 1 $2.00 $2.00 $2.00 $2.00 $2.00 $2.00 $2.00 $2.00 8 Milling S.Y. 268 $10.00 $2,680.00 $12.17 $3,261.56 $3.50 $938.00 $5.00 $1,340.00 9 HMA-Commercial Grade (Class A) (Surface) TON 30 $175.00 $5,250.00 $190.64 $5,719.20 $135.00 $4,050.00 $135.00 $4,050.00 10 HMA-Commercial Grade (Class A) (Patching) TON 15 $200.00 $3,000.00 $232.39 $3,485.85 $170.00 $2,550.00 $170.00 $2,550.00 11 Traffic Control L.S. 1 $5,000.00 $5,000.00 $2,115.00 $2,115.00 $2,000.00 $2,000.00 $2,000.00 $2,000.00 SUB TOTAL $97,607.00 $86,363.86 $87,763.50 $89,337.00 TOTAL BID - $186,159.00 $166,930.86 $172,829.00 $174,414.00

______Keith A. Browning, PE, Director of Public Works Date Jamie Shew, Douglas County Clerk Date

DOUGLAS COUNTY PUBLIC WORKS PROJECT 2018-52/BID NO. 19-F-0004 DESCRIPTION: BRIDGE PAINTING 02.00N-14.80E & 03.06N-10.00E BID TABULATION February 13, 2019

Bridge 02.00N-14.80E ENGINEER'S ESTIMATE Lindner Painting Inc Internatinal Rigging Group Olympus Painting Contractors ITEM NO. BID ITEM UNIT QTY UNIT PRICE TOTAL UNIT PRICE TOTAL UNIT PRICE TOTAL UNIT PRICE TOTAL 1 Bridge Painting L.S. 1 $28,000.00 $28,000.00 $39,000.00 $39,000.00 $60,296.30 $60,296.30 $112,500.00 $112,500.00 2 Environmental Protection L.S. 1 $20,000.00 $20,000.00 $19,500.00 $19,500.00 $18,552.71 $18,552.71 $20,000.00 $20,000.00 3 Mobilization L.S. 1 $10,000.00 $10,000.00 $4,000.00 $4,000.00 $9,276.36 $9,276.36 $10,000.00 $10,000.00 4 Traffic Control L.S. 1 $5,500.00 $5,500.00 $4,400.00 $4,400.00 $4,638.17 $4,638.17 $10,000.00 $10,000.00 SUB TOTAL $63,500.00 $66,900.00 $92,763.54 $152,500.00

Bridge 03.06N-10.00E ITEM NO. BID ITEM UNIT QTY UNIT PRICE TOTAL UNIT PRICE TOTAL UNIT PRICE TOTAL UNIT PRICE TOTAL 5 Bridge Painting L.S. 1 $25,000.00 $25,000.00 $34,000.00 $34,000.00 $30,148.15 $30,148.15 $112,500.00 $112,500.00 6 Environmental Protection L.S. 1 $18,000.00 $18,000.00 $16,500.00 $16,500.00 $9,276.35 $9,276.35 $20,000.00 $20,000.00 7 Mobilization L.S. 1 $8,000.00 $8,000.00 $4,000.00 $4,000.00 $4,638.18 $4,638.18 $10,000.00 $10,000.00 8 Traffic Control L.S. 1 $5,500.00 $5,500.00 $4,400.00 $4,400.00 $2,319.09 $2,319.09 $10,000.00 $10,000.00 SUB TOTAL $56,500.00 $58,900.00 $46,381.77 $152,500.00 TOTAL BID - $120,000.00 $125,800.00 $139,145.31 $305,000.00

______Keith A. Browning, PE, Director of Public Works Date Jamie Shew, Douglas County Clerk Date

DOUGLAS COUNTY ADMINISTRATIVE SERVICES Douglas County Courthouse 1100 Massachusetts Street, Unit 206 Lawrence, KS 66044-3064 (785) 330-2863 Fax (785) 838-2480 www.douglas-county.com

MEMO TO: The Board of County Commissioners Sarah Plinsky, Interim County Administrator/Asst. County Administrator

FROM: Brooke Sauer, Budget Technician

SUBJECT: Adopt resolution to waive GAAP requirements per K.S.A. 75-1120a(a) for FY 2019.

DATE: February 15, 2019

Douglas County financial statements are prepared on a Regulatory Basis and in accordance with the Kansas Municipal Audit and Accounting Guide (KMAAG). Per K.S.A. 75-1120a(c), it is required that the governing body adopt a resolution annually to waive the Generally Accepted Accounting Principles (GAAP) requirement.

The following motion is recommended to approve these items: “Adopt resolution to waive GAAP requirements per K.S.A. 75-1120a(a) for FY 2019.” RESOLUTION NO. 19-____

A RESOLUTION WAIVING GAAP PROCEDURES BY THE BOARD OF COUNTY COMMISSIONERS OF DOUGLAS COUNTY, KANSAS

WHEREAS, The Board of County Commissioners, Douglas County, Kansas, has determined that the financial statements and financial reports for the year ended 2019 to be prepared in conformity with the requirements of K.S.A. 75-1120a(a) are not relevant to the requirements of the cash basis and budget laws of this state and are of no significant value to the Board of County Commissioners or the members of the general public of Douglas County and

WHEREAS, there are no revenue bond ordinances or other ordinances or resolutions of the municipality which require financial statements and financial reports to be prepared in conformity with K.S.A. 75- 1120a(a) for the year ended 2019.

NOW, THEREFORE BE IT RESOLVED, by the Governing Body of Douglas County, Kansas, in regular meeting duly assembled this 20th day of February, 2019 that the Board of County Commissioners waives the requirements of K.S.A. 75-1120a(a) as they apply to Douglas County for the year ended 2019.

BE IT FURTHER RESOLVED that Douglas County shall cause the financial statements and financial reports of Douglas County to be prepared on the basis of cash receipts and disbursements as adjusted to show compliance with the cash basis and budget laws of this State.

This Resolution shall take effect and be in force from and after its adoption.

IN WITNESS WHEREOF, the foregoing Resolution was adopted this 20th day of February, 2019.

BOARD OF COUNTY COMMISSIONERS DOUGLAS COUNTY, KANSAS

Michelle Derusseau, Chair

ATTEST: Nancy Thellman, Commissioner

Jameson D. Shew Patrick Kelly, Commissioner

Linda Koester-Vogelsang Court Administrator, Peggy C. Kittel, Chief Judge DOUGLAS COUNTY DISTRICT COURT Seventh Judicial District 785-832-5264 th Amy J. Hanley, Judge Judicial Center, 111 E. 11 St. Douglas A. Hamilton Lawrence, Kansas 66044-2966 Clerk of the District Court, Sally D. Pokorny, Judge 785-832-5333

Kay Huff, Judge Melinda Wynn Chief Court Services Officer, 785-832-5218 James R. McCabria, Judge Katy Nitcher Paula B. Martin, Judge Court Trustee, 785-832-5315 James T. George, Pro Tem Judge Heather Krase-Minnick Citizen Review Board Director, Bethany Roberts, Juvenile Judge 785-832-5219

MEMO TO: Board of County Commissioners

FROM: Linda Koester-Vogelsang, District Court Administrator

SUBJECT: Hire Programmer/Analyst for Douglas County District Court

DATE: February 7, 2019

Douglas County District Court is seeking Douglas County support to provide statistical caseload analysis for the Douglas County District Court judges and the Douglas County Commissioners.

Douglas County District Court has one FTE programmer II paid by the State of Kansas. The court programmer is kept constantly busy maintaining the Court Case management system, digital recording systems in eight courtrooms and the technology and AV equipment in those eight courtrooms.

The Douglas County judges are eager for information to assist with the efficiency of the courts. Unfortunately, the Court does not have the necessary staff to provide that information to the judges or the County Commissioners when there are inquiries.

The Chief Judge has had discussions with the Interim County Administrator, law enforcement and Criminal Justice Services. The recommendation has been to request that the Board of County Commissioners approve a Programmer I position for the Douglas County District Court.

Therefore, Douglas County District Court requests the Board’s approval to hire a Programmer I position for the District Court. The salary for this position would not exceed $49,708, with fringe estimated at $22,622, for an overall cost of $72,330.

The following motion is recommended to approve these items: “Approve an increase to the Douglas County District Court Budget for a Programmer/Analyst position.”

DOUGLAS COUNTY ADMINISTRATOR 1100 Massachusetts Street Lawrence, KS 66044-3064 (785) 832-5328 Fax (785) 832-5148 [email protected] Sarah Plinsky Interim County Administrator

Memorandum

To: Board of County Commissioners From: Sarah Plinsky, Interim County Administrator Date: January 23, 2019 RE: Hold a public hearing for an Alternative Project Delivery Program for Douglas County Correctional Facility

Per direction from the Board of County Commissioners, staff is recommending that the County secure the services of a Construction Manager at Risk to assist in the design of an expansion to the Douglas County Correctional Facility (DCCF). Over the last several years, and specifically as last discussed on January 16, 2019, the county has been studying an expansion at the DCCF. A construction manager can provide enhanced expertise on cost estimating during the design development and construction document development process. Soliciting and contracting with a construction manager doesn’t approve the project at this time. Once preconstruction is complete, construction documents will be prepared and the project will be bid, the Construction Manager at Risk will agree to perform the work for a Guaranteed Maximum Price (GMP) which will include within it its costs of the work, plus fixed percentages for General Conditions and Fee. The GMP and total project budget will be submitted to the Commission for approval.

To date, an architect has been retained to prepare the design up through the schematic design stage with the intention that the County will evaluate the feasibility and practicality of going forward into construction. Bringing a contractor on board early in the design process as a “construction manager at risk” (“CMR”) can increase the efficiency and cost effectiveness of the project’s construction and end product. CMRs are not allowed under the County’s default design-bid-build procurement statute, but are authorized for counties in KSA 19-216b et seq which allow for a CMR. The BOCC is requesting alternative delivery procurement through a CMR under that authorization.

The following requirements must be met.

First, when a request is made for alternative delivery procurement by the County, the County must publish a notice in the official county newspaper that the BOCC will be holding a public meeting with the opportunity for comment on such request. Notice shall be published at least 15 days prior to the hearing.

Second, after a public hearing in which there is opportunity for comment, the BOCC must determine and find that: 1. The authorization for CMR is for the sole and exclusive use of “planning, acquiring, designing, building, equipping, altering, repairing, improving or demolishing any structure or appurtenance thereto, including facilities, utilities or other improvements to any real property, but shall not include highways, roads, bridges, dams or related structures or stand-alone parking lots”. 2. The use of a CMR is appropriate to this situation. In making such determination, the BOCC may consider: (1) The likelihood that the CMR will serve the public interest by providing substantial savings of time or money over the traditional design-bid-build delivery process. (2) The ability to overlap design and construction phases is required to meet the needs of the County. (3) The project presents significant phasing or technical complexities, or both, requiring the use of an integrated team of designers and constructors to solve project challenges during the design or preconstruction phase. (4) The use of a CMR will not encourage favoritism in awarding the public contract or substantially diminish competition for the public contract.

Third, assuming such determinations have been made, the County shall publish a notice of the request for qualifications and proposals as outlined in the Finance Policy. So as to best facilitate the selection of a CMR, staff will name an Evaluating Committee to handle the process and ultimately make a final recommendation to the BOCC for selection.

Notice of Public Notice of RFQ Commencement of Public Meeting Determination of Request for CMR Meeting in official according to RFQ DAY 15+ Appropriateness newspaper porocedures DAY 15+

The notice of the Public Hearing was published before February 5.

Suggested Motion: “Authorize the use of the Construction Manager at Risk delivery method for the sole and exclusive use of planning, acquiring, designing, building, equipping, altering, repairing, improving or demolishing any structure or appurtenance thereto, including facilities, utilities or other improvements to any real property, but shall not include highways, roads, bridges, dams or related structures or stand-alone parking lots for the Douglas County Correctional Facility expansion project.”

From: County Commissioner - Thellman, Nancy To: AD - Crabtree, Robin Cc: ADS - Plinsky, Sarah Subject: Fwd: Feb 20 - CMR agenda items Date: Monday, February 18, 2019 5:20:43 PM

Robin, This fellow is asking for his questions to be part of the public record—so would you please add to the packet as public correspondence? Thanks Nancy

Sent from my iPad

Begin forwarded message:

From: Date: February 18, 2019 at 3:26:20 PM CST To: , , , Cc: Subject: Feb 20 - CMR agenda items

Good afternoon Commissioners/Staff - I had a couple questions regarding items #3 and #4 on Wednesday's agenda.

1) Criterion #1 indicates that the CMR will "serve the public interest by providing substantial savings of time or money over the traditional design- bid-build delivery process".

Obviously I understand the time savings. Do we have an initial cost savings estimate for the CMR strategy on each project?

2) Criterion #4 indicates that the CMR "will not encourage favoritism in awarding the public contract or substantially diminish competition for the public contract".

How do we determine whether competition is diminished under the CMR strategy? It appears the open period for the RFQ is 15 days (correct me if I am wrong). That seems like a very short period to solicit quotes for 2 complex projects.

Can you please ensure these queries are entered into the public record?

Thanks for your time!

Patrick Wilbur Treasurer, Lawrence Sunset Alliance 521 Durham Court Lawrence, KS 66049 DOUGLAS COUNTY ADMINISTRATOR 1100 Massachusetts Street Lawrence, KS 66044-3064 (785) 832-5328 Fax (785) 832-5148 [email protected] Sarah Plinsky Interim County Administrator

Memorandum

Per direction from the Board of County Commissioners, staff is recommending that the County secure the services of a Construction Manager at Risk to assist in the design of an expansion to the Tier 2 and Tier 3 behavioral health housing projects. Following passage of Proposition 1 in November, 2018, Douglas County has engaged in a partnership with Bert Nash Community Mental Health Center and the Lawrence Douglas County Housing Authority to construct transitional and permanent supportive housing facilities and individual units located adjacent to the proposed mental health crisis center. A construction manager can provide enhanced expertise on cost estimating during the design development and construction document development process. Soliciting and contracting with a construction manager doesn’t approve the project at this time. Once preconstruction is complete, construction documents will be prepared and the project will be bid, the Construction Manager at Risk will agree to perform the work for a Guaranteed Maximum Price (GMP) which will include within it its costs of the work, plus fixed percentages for General Conditions and Fee. The GMP and total project budget will be submitted to the Commission for approval.

The following requirements must be met.

Notice of Public Notice of RFQ Commencement of Public Meeting Determination of Request for CMR Meeting in official according to RFQ DAY 15+ Appropriateness newspaper porocedures DAY 15+

The notice of the Public Hearing was published before February 5.

Suggested Motion: “Authorize the use of the Construction Manager at Risk delivery method for the sole and exclusive use of planning, acquiring, designing, building, equipping, altering, repairing, improving or demolishing any structure or appurtenance thereto, including facilities, utilities or other improvements to any real property, but shall not include highways, roads, bridges, dams or related structures or stand-alone parking lots for the Tier 2 and Tier 3 behavioral health housing projects.”

From: County Commissioner - Thellman, Nancy To: AD - Crabtree, Robin Cc: ADS - Plinsky, Sarah Subject: Fwd: Feb 20 - CMR agenda items Date: Monday, February 18, 2019 5:20:43 PM

Robin, This fellow is asking for his questions to be part of the public record—so would you please add to the packet as public correspondence? Thanks Nancy

Sent from my iPad

Begin forwarded message:

From: Date: February 18, 2019 at 3:26:20 PM CST To: , , , Cc: Subject: Feb 20 - CMR agenda items

Good afternoon Commissioners/Staff - I had a couple questions regarding items #3 and #4 on Wednesday's agenda.

1) Criterion #1 indicates that the CMR will "serve the public interest by providing substantial savings of time or money over the traditional design- bid-build delivery process".

Obviously I understand the time savings. Do we have an initial cost savings estimate for the CMR strategy on each project?

2) Criterion #4 indicates that the CMR "will not encourage favoritism in awarding the public contract or substantially diminish competition for the public contract".

Can you please ensure these queries are entered into the public record?

Thanks for your time!

MEMO TO: Board of County Commissioners

FROM: Jill Jolicoeur, Assistant to the County Administrator

SUBJECT: Amend agreement with Treanor HL for Tier II and Tier III Housing Projects at Douglas County Recovery Campus

DATE: February 20, 2019

On May 8, 2017 the Board of County Commissioners approved Standard Form of Agreement Between Owner and Architect for planning, designing and building the Douglas County Mental Health Crisis Center project with Treanor HL Architects. A copy of this agreement is attached for reference. During this same time period, Douglas County utilized Treanor HL Architects to perform design services of the identified programmatic needs for several facilities and functional needs that were formulated by Douglas County and partner agencies (Bert Nash and LDCHA), herein referred to as the Supportive Housing Work Group, on the Douglas County Recovery Campus. This work group developed programs for the identified buildings and looked at different organizational concepts for the site, its circulation and possible arrangements of buildings, considering existing and future infrastructure needs.

Over the past 18 months the Supportive Housing Work Group has convened on a regular basis to consult with Chris Cunningham and Walker Douglas, Associate Principals at Treanor HL to develop the site plan and initial designs for the Tier II and Tier III housing projects at the Douglas County Recovery Campus. Upon approval of this amended agreement Cunningham and Douglas will remain involved in this project as design concepts are finalized and the County moves towards Construction Documents.

The attached amended agreement reflects a modified scope of work from the previous agreement to include the Tier II and Tier III housing projects and the estimated costs associated with planning, design, and construction of these projects. Compensation associated with services is based upon an assumed project cost of $3,500,000 for the Tier II and Tier III projects, of which Treanor HL will be paid 8%, or approximately $280,000. This agreement has been reviewed by the County Counselor.

The following motion is recommended to approve these items: “Approve an Addendum to Standard Form of Agreement Between Owner and Architect with the Treanor HL to for the Tier II and Tier III Housing Projects at the Douglas County Recovery Campus.”

DOUGLAS COUNTY ADMINISTRATION 1100 Massachusetts Street Helen Schnoes Lawrence, KS 66044-3064 Sustainability & Food (785) 832-5157 Fax (785-832-5148 Systems Planner, AICP [email protected]

Memo to: Douglas County Board of County Commissioners Sarah Plinsky, Interim County Administrator

From: Helen Schnoes, Sustainability & Food Systems Planner

Subject: Countywide Parks & Open Space Planning in Douglas County

Date: February 14, 2019

Horizon 2020, the Comprehensive Plan for Lawrence and unincorporated Douglas County, provides direction for enhanced parks and open space planning, coordination, and protection in our community. The current comprehensive plans for Baldwin City and Eudora also call for parks planning and open space preservation. Despite the holistic vison expressed by these guiding documents (see Staff Report), a gap exists in how the County and its partners can strategically advance implementation. No documented strategy currently exists for determining how, when, or where the County should plan for parks and open space system development, preservation, and funding. Chapter Fourteen: Specific Plans in Horizon 2020 offers direction for how a Specific Issue Plan can “provide the focused guidance necessary for a proper decision making regarding an area’s future” (14-1) in support of Comprehensive Plan implementation.

The County has made progress through the work of the ECO2 Commission (referenced in Horizon 2020) to cultivate dialogue about preservation. The creation and funding of the Heritage Conservation Council (HCC) brought new resources and capacity to advance analysis and action for local preservation. A 2014 HCC grant funded the Kansas Biological Survey to conduct a Douglas County Natural Areas Inventory, finding that of the 0.5% original prairie remaining in 2005, an additional 18% was lost in the subsequent 10 years. A second HCC grant project, to conclude this summer, will further identify high-priority native prairies and woodlands in the County for preservation, building on preliminary findings in the Natural Areas Inventory.

The County-funded work of KBS prompted internal staff conversations about the role of the County in parks and open space planning and implementation. Following community forums hosted by KBS in 2018, some landowners with recreationally-optimal and/or ecologically- important lands contacted the Zoning and Codes Office about acquisition or conservation options. The Sustainability Office conducted preliminary research to understand how other communities have pursued countywide parks and open space coordination, enhancement, and implementation. This included interviews with open space planners in other communities and best practice research, including guidance within the STAR sustainability framework.

DOUGLAS COUNTY ADMINISTRATION 1100 Massachusetts Street Helen Schnoes Lawrence, KS 66044-3064 Sustainability & Food (785) 832-5157 Fax (785-832-5148 Systems Planner, AICP [email protected]

The creation of a Countywide Parks and Open Space Plan based upon robust community engagement and geospatial analysis is a common step to inform more specific action to

implement identified community priorities. To determine next steps, staff requests Commission direction and has prepared the attached Staff Report with additional background and options for next steps, including creation and approval of a project charter. The project charter would include scope of work, estimated budget, and key timeline milestones for creation of a Countywide Parks and Open Space Plan, to support strategic implementation of Horizon 2020.

Recommended Action: Direct staff to prepare an open space planning project charter for future Commission consideration.

STAFF REPORT: POTENTIAL PROCESS INITIATION FOR COUNTYWIDE PARKS AND OPEN SPACE PLAN DEVELOPMENT. To support Commission consideration of launching a Countywide Parks and Open Space plan development process, Lawrence-Douglas County Sustainability staff has prepared the following report, summarized below.

For Douglas County Board of County Commissioners consideration on February 20, 2019.

Summary Next Steps (Pending Commission Direction; 6-months) ...... 2 County Commission Decision Points ...... 2 Proposed Actions Steps Needing Commission Direction ...... 2 Proposed Action Steps to Be Staff-Led ...... 2 Foundation in Horizon 2020 ...... 3 Role of the County ...... 3 Definition and Description of Need ...... 3 Strategies ...... 4 Priority Natural Areas ...... 4 Purposes for Increased Preservation ...... 4 Specific Goals and Policies – Chapter Nine: Parks, Recreation, and Open Space ...... 5 Goal 1: Coordinated and Cooperative Planning and Development (9-11) ...... 5 Goal 3: Expand the Existing Parks, Recreation, and Open Space System (9-16) ...... 5 Continued Community Interest ...... 6 Figure 1: Level of Agreement with Statements that could Describe the Community Vision About the Future ...... 6 Figure 2: Level of Agreement with More Parks and Open Space, Mean Rating by Census Block Group ...... 7 Connection to Other Plans ...... 7 City of Lawrence Parks and Recreation Comprehensive Master Plan ...... 7 Baldwin City Comprehensive Plan ...... 8 Eudora Comprehensive Plan ...... 8 Upcoming Grant Opportunities...... 9 Peer to Peer Learning Exchange Grant ...... 9 Partners for Places Grant ...... 9

Staff Report | Lawrence-Douglas County Sustainability Office

Next Steps (Pending Commission Direction; 6-months) County Commission Decision Points 1. Approval of Project Charter to establish shared expectations, scope of work, estimated budget, roles, and timeline/deliverable milestones for Countywide Parks and Open Space Plan development process. Timing dependent upon Commission direction on items below. 2. Creation of a Steering Committee or Taskforce to aid in process oversight. Possible at several milestones, including upon project charter adoption, once funding for the Countywide Parks and Open Space Plan process has been secured, or once a consultant has been contracted to lead the planning process, among others.

Proposed Actions Steps Needing Commission Direction A. Draft of Douglas County Parks and Open Space Asset Inventory to inform project charter development and present to County Commission inform further discussion. B. April Study Session with County Commission to discuss what should be in a draft project charter, or to review a draft project charter and provide guidance for revision in advance of Commission approval. Stakeholder groups and agency partners with parks and open space expertise and interest, particularly in unincorporated Douglas County, could be invited to present and give comments at this time or soon thereafter. C. Engagement with other governing bodies from county municipalities, townships, and relevant staff to inform project charter development and approval process, such as staff coordination, formal presentations, or Commission-led conversations. Engagement could also include the Lawrence-Douglas County Planning Commission as deemed appropriate. D. Agenda item at Joint City-County-School Board meeting about process. E. Learning tours within Douglas County to current parks and open space sites. Proposed Action Steps to Be Staff-Led A. Engagement with Historic Conservation Council for input on role, scope, and process in advance of project charter development. B. Targeted stakeholder informal meetings to identify current interests, concerns, aligned opportunities, and potential roles to inform project charter development. C. Submission of Peer to Peer Learning Exchange Grant in March through Urban Sustainability Directors’ Network (USDN). Suggested before approval project charter. D. Host regional convening in May with peer communities who bring a diversity of examples and experience with Countywide Parks and Open Space Plan development and implementation. Pending award of the USDN Peer to Peer Learning Exchange Grant. E. Identify budget requests for 2020 budget process consideration related to the effort. F. Submission of Partners for Places Grant in July through Urban Sustainability Directors’ Network pending development of foundation partnership for matching funds. Include key characteristics, skills, and areas of expertise needed for Countywide Parks and Open Space Planning consultant. Suggested after approval of project.

Subsequent community engagement, planning process, and Countywide Parks and Open Space Plan drafting and adoption not included within this 6-month time horizon. The project charter, Partners for Places Grant (or other funding as identified), and creation of a stakeholder oversight group will all provide greater direction for these important later steps.

Staff Report | Lawrence-Douglas County Sustainability Office

Foundation in Horizon 2020 Throughout Horizon 2020 there exists a clear vision for enhanced Parks, Recreation, and Open Space planning, coordination, financing, and development in Douglas County, including unincorporated areas.

Role of the County In the opening to the Chapter Nine: Park, Recreation, and Open Space Areas and Facilities, the plan states: It is important that the County take an active role in preserving unique landscapes, open spaces, and historic sites that present recreational opportunities. It is also important that the County work in partnership with the communities of Baldwin City, Eudora, Lawrence, and Lecompton to help create a regional park, recreation, and open space system that ties the communities together and furthers the intent of each community’s desire to provide quality services to its residents and visitors. (9-1)

Definition and Description of Need Definitions are included in Horizon 2020 for various parks and open space facility types (9-9, 9- 10). Among a range of facility types, definitions include the following.

Open Space Areas are defined as a range of land uses and community assets: “provides visual & psychological relief from the built environment; public access via trails & walkways to these areas is important to provide passive recreational opportunities where it is compatible with resource protection & environmental regulations; open space areas may or may not be improved, but can include playfields, trails, greenbelts/greenways, community gardens, farmed areas, buffers between land uses of differing intensities, such as residential & commercial or industrial activity, areas within community or neighborhood parks which are left in their natural state, & other environmentally sensitive areas.”

Natural Area, as a parks and recreation term, “describes any area with critical environmental resources such as, native ecosystems including those historically unaltered by man since 1800, riparian forest, wildlife habitat, floodplains & drainageways, steep slopes & rock outcroppings, wetlands, & mature woodlands like the corridor that runs from Baldwin Woods to Clinton Lake.”

Description of Need The Lawrence Parks & Recreation Department maintains a Comprehensive Master Plan. For the creation of Horizon 2020, the public involvement of that process influenced descriptions of need for various parks, recreation, and open space facility types. When looking at Open Space & Greenways, the Lawrence-focused engagement drew out the need for a countywide approach.

• Open Space & Greenways: “Natural areas are desired, especially through the establishment of greenbelts & greenways, as the community continues to grow outward into the unincorporated areas of Douglas County; an open space network is envisioned to provide ecological & recreational connections throughout Douglas County preserving the community’s floodplains, wetlands, wildlife habitat, steep slopes & rock outcroppings, native prairie remnants, historic sites, agricultural lands, & other environmentally 3

Staff Report | Lawrence-Douglas County Sustainability Office

sensitive areas; greenways would in particular connect people to the Wakarusa and Kansas rivers, and the Clinton Reservoir; a major greenbelt around the city would connect the four cornerstone natural areas.” (9-5, 9-6)

Strategies Strategies featured in the chapter introduction (9-2) include: • “Coordinate parks, recreation, and open space planning and development between the City of Lawrence and unincorporated Douglas County to provide overlapping and connecting park and recreation opportunities. Additionally, the City and County should more carefully coordinate park and open space acquisition in the Lawrence Urban Growth Area.” • “Develop a communication network between all city and county departments, the partners who aide in parks and recreation, and the community to increase awareness, understanding, and advocacy.” • “Develop regional parks that create a strong sense of community pride and livability.” • “Coordinate with private property owners to provide additional opportunities for open space preservation beyond publically owned parks, such as, through agriculture use, land trusts, buffers, and easements.”

Priority Natural Areas “Priority natural areas” were identified in Horizon 2020’s public engagement process for unincorporated Douglas County that “should be protected or acquired due to their unique environmental and natural contributions to the County” (9-6). The Plan then lists a number of creative and innovative techniques to consider and encourage for land acquisition (9-8, 9-9)

1. “Natural corridors along the Kansas River, the Wakarusa River, and a corridor between Douglas County State Lake, Lone Star Lake, and Clinton Reservoir.”

2. “Clusters of undisturbed tallgrass prairies in northwest and southeast Douglas County.”

3. “Additionally, there are a number of historic sites in unincorporated Douglas County that hold opportunities for preserving open space and becoming part of the overall park, recreation, and open space systems.”

Asset Inventory – In Progress County staff have initiated work to conduct an asset inventory to inform the potential Countywide Parks and Open Space planning process, drawing on recent wins like the further development of the Lawrence Loop, the Baldwin City easement for trail creation to Ottawa, preservation of parts of Baldwin Woods, as well as losses, as highlighted in the Kansas Biological Survey Natural Resource Inventory. Commission direction for key questions to ask in further analysis is welcome.

Purposes for Increased Preservation Purposes for increased preservation of natural areas and open spaces for unincorporated Douglas County are also outlined in Horizon 2020 (9-6), including:

Staff Report | Lawrence-Douglas County Sustainability Office

• Maintaining rural character • Providing regional recreational opportunities for trails and community connections • Encouraging sustainable agricultural practices • Increasing stormwater and floodwater management capabilities • Improving wildlife habitat quality • Enhancing overall ecological function

Specific Goals and Policies – Chapter Nine: Parks, Recreation, and Open Space Specific Goals and Policies of Horizon 2020 establish the following foundation for action and further implementation through a more strategically-focused Countywide Parks and Open Space Plan, with the need for “guidelines to provide direction” (9-16). The areas for future parks are only referenced within the Lawrence Urban Growth Area (9-25, Map 9-1), which while important, omits other areas evoked elsewhere as important for countywide efforts. In addition to those highlighted below, further goals and policies in Chapter Nine express the need to consider linkages with the long-range transportation plan, bike plan, as well as linkages for ecological processes. Other chapters of Horizon 2020 also relate to intentional parks and open space efforts, including Chapter 16: The Environment.

Goal 1: Coordinated and Cooperative Planning and Development (9-11) • Policy 1.2: Encourage Private/Public Partnerships and Innovative Techniques for Land Acquisition and Open Space Preservation (9-12) o a. Identify, encourage, and provide incentives for land dedication or other voluntary mechanisms that protect natural and/or historic areas of Lawrence and unincorporated Douglas County for ecological or recreational purposes. o b. Encourage the use of easements, landowner agreements, and deed restrictions across private property for multiple-use trails and open space areas, especially natural and/or historic areas. o c. Establish a public education and awareness program on the benefits of a park, recreation, and open space system, especially those with natural and/or historic areas. o d. Encourage the further evaluation and use of the “Parkland and Open Space Acquisition Methods” outlined in this Chapter (pages 9-7 – 9-9). • Policy 1.3: Provide Funding Mechanisms for Maintenance and Acquisition (9-12, 9- 13)

Goal 3: Expand the Existing Parks, Recreation, and Open Space System (9-16) • Policy 3.1: Identify Future Parklands and Open Space Areas o b. Facilitate the development of new park, recreation, and open space areas and facilitates as necessary to stay ahead of anticipated growth and to meet community demand or as unique opportunities arise to do so. o f. Establish a greenbelt / greenway system that connects the community’s parks, recreation, and open space system and provides increased recreational opportunities, promotes the natural character of the area, and preserves the ecological integrity of natural systems.

Staff Report | Lawrence-Douglas County Sustainability Office

o g. Establish a greenbelt / greenway system encircling the community that connects the four cornerstone natural areas including Clinton Reservoir, the Wakarusa River, and the Kansas River. o i. Use research on historic sites to locate and establish parks and open space that preserve and promote the history of the community.

Continued Community Interest Great interest continues to exist among Douglas County residents for parks, open space, and protection of natural areas. Statistically-valid results from the 2014 ETC Survey commissioned as part of the compressive plan update to inform the currently drafted Plan 2040 demonstrated this continued support. Regarding the importance of city and county services, 94% of respondents cited parks, recreation, and open space as “somewhat important” or “very important” (page 5). The chart and map below are excerpted from the full survey report compiled by ETC for City of Lawrence and Douglas County in June 2014. Data was collected from residents via mail, web, and phone.

Figure 1: Level of Agreement with Statements that could Describe the Community Vision About the Future Among a number of proffered statements “that could describe the community vision about the future,” the second-highest score was for “better protection of natural resources” (77% strongly agree or agree) and the sixth-highest score was for “more parks and open space” (69% strongly agree or agree) (page 10, included below).

Staff Report | Lawrence-Douglas County Sustainability Office

Figure 2: Level of Agreement with More Parks and Open Space, Mean Rating by Census Block Group Across Douglas County, the mean results for the level of agreement concerning parks and open space was “strongly agree” or “agree,” save one region where the mean response was “neutral.” (page 48, included below).

Connection to Other Plans City of Lawrence Parks and Recreation Comprehensive Master Plan The City of Lawrence maintains a Parks and Recreation Comprehensive Master Plan that Horizon 2020 incorporates by direct reference as a more focused implementation strategy document for planning, management, and future operations. An updated PRCMP was adopted in 2017 and will be incorporated by reference into the draft Plan 2040 (currently under review by the Planning Commission). Priorities in the new PRCMP include: • Enhancing trail connectivity, including completing the Lawrence Loop trail (page 127) • Prioritization of land acquisition to the south and west of Lawrence (page 128) • “Open spaces and natural areas,” which ranked as the most important category in the community survey used to inform the PRCMP (page 128)

Since the plan’s adoption in 2017, progress has been made, including the recent award of $480,000 in funding from the Kansas Department of Transportation’s Transportation Alternatives Program for the 2020 Fiscal Year to support completion of the Lawrence Loop. This spring, the Kansas Land Trust plans to plant native prairie grasses at the City-owned Lawrence Nature Park as part of enhancing ecological and biodiversity growth in the preserve area, as well as offering new trail opportunities. The Kansas Land Trust holds development rights to the park.

While Horizon 2020 states that the PRCMP “helps plan for future parks and recreational opportunities for residents of Lawrence and unincorporated Douglas County” (9-1), the 2017

Staff Report | Lawrence-Douglas County Sustainability Office

PRCMP has an exclusive City of Lawrence orientation, is only adopted by the City of Lawrence Commission, and does not include the county’s full geography. A Countywide Parks and Open Space Plan for Douglas County could complement the PRCMP and provide the missing strategic implementation framework to help the County advance the vision, goals, and policies of Horizon 2020 and county residents.

Baldwin City Comprehensive Plan In addition to a number of stated goals and policies concerning parks and open space, the Baldwin City comprehensive plan includes Section 11: Community Development Guiding Principles which encourages development to occur while the City also aims to: • 11.8 Recognize Environmental Stewardship, noting the importance of county coordination to advance various stewardship goals (page 74). • 11.9 Provide Recreational Facilities and Open Space, noting that “Making the financial commitment to purchase land in advance of new subdivision growth is a sign of progressive planning and foresight. This plan hopes to instill a community vision where parks and open space contribute to the small town character and market attractiveness for new families;” and that “Another key recreation and open space asset valuable to Baldwin City is the Douglas County State Lake. Every effort should be explored to create a joint city/county/state collaborative strategy to create linkages and shared facilities” (page 75).

More recently, the Baldwin City community has taken active steps towards regional trail development, including the $345,000 agreement with the Midland Railway Historical Association in 2018 to support linkages with regional trails connecting in Ottawa, for which Douglas County subsequently approved and provided support of $94,000 as a 5-year commitment.

Eudora Comprehensive Plan The Eudora Comprehensive Plan also includes goals and policies concerning parks and open space, such as in Chapter Four: Planning Issues and Objectives: • “Goal: Provide safe, well-designed accessible areas for passive and active recreation to meet the needs and desires of all age groups. Action: Partner with the County and State agencies to implement regional parks, recreation and open space programs such as the Metro-Green and Lawrence-Douglas County trails plans.” (Page 103) • “Goal: Preserve and protect the natural environment, open space and scenic quality of the community and its surrounding area. Action: Designate greenways and natural corridors to be preserved as part of a greater recreation and open-space program implemented in partnership with the County.” (Page 103)

Parks and Recreation continue to be important to the Eudora community, as demonstrated in the 2015 city ballot initiative to approve a 0.75% sales tax increase to support implementation of the 2012 Eudora Parks and Recreation Master Plan. A 2016 community survey identified that trails remain a high priority in Eudora.

Staff Report | Lawrence-Douglas County Sustainability Office

Upcoming Grant Opportunities Two grant opportunities exist in 2019 that could aid the County in advancing intentional community engagement and strategic development of a Countywide Parks and Open Space Plan. Both are awarded by the Urban Sustainability Directors’ Network, of which the Lawrence- Douglas Sustainability Office is a member. Staff have reviewed the application and award criteria and believe these opportunities could significantly contribute to the process to create a Parks and Open Space Plan for Douglas County and recommended pursuit.

Peer to Peer Learning Exchange Grant A peer exchange travel support grant could fund a community learning and engagement event that invites and funds travel for leaders in countywide park and open space planning and implementation from peer communities. This approach would connect Douglas County elected officials, local government staff, landowners and residents, as well as parks and open space stakeholders with examples of countywide parks and open space efforts from similar Midwestern communities. This grant can provide up to $7000 and is due in March 2019.

Partners for Places Grant A place-based partnership grant to pursue with a local or state foundation to support advancement in sustainability, including green infrastructure and implementation of a priority established in an adopted plan, such as the direction given in Horizon 2020 for countywide parks and open space efforts. The grant can also fund creation of new plans and associated planning processes that advance community sustainability in an area identified for improvement by the STAR Community Sustainability Certification process, of which Lawrence is a certified member. Intentional community engagement and embedding social equity into projects are pillars of this grant program. This grant can provide up to $75,000 with a 1:1 match from a foundation partner for a one-year project, and up to $150,000 with a 1:1 match from a foundation partner for a two-year project. Staff research among other communities suggests this would be sufficient for a high-quality countywide parks and open space planning process and plan creation. A new Request for Proposals is expected in June 2019 and due in July 2019, with award notifications anticipated in October 2019. No local government matching dollars are required for this grant.

Jail Expansion Needs Board of County Commissioners – February 20,2019 Commission Direction:

Meet the immediate need - Bring inmates housed ▶ out of County back to Douglas County Restore re-entry and programs space ▶ Allow for inmates to be safely housed in the ▶ appropriate housing unit – Safe Classification Build a financial sustainable solution ▶

Next Steps:

Upon BOCC Approval to use a Construction ▶ Manager at Risk, staff will issue an RFP to select a firm Staff and the design team need consensus on this ▶ design concept to proceed with design development. Neither of these steps represent final approval ▶ the expansion project. They allow staff to continue with the process. Preliminary Cost Summary

Tower Addition: Fully built out, includes all site work, ▶ mechanical, design fees, furniture, contingencies, and escalation to 2020 – approximately $23.0 million If a housing pod is only shelled in and not fitted out, there ▶ is a savings of $1.5 million. The costs to fit out that housing unit in the future will be more than $1.5 million. Medical Unit would be an additional $500,000 to the fully ▶ built out cost. Re-entry/work release addition - $2.1 million

▶

Tower Addition:

South Tower can accommodate four housing units, on two floors.

▶ 50,195 gross square feet (GSF) The May proposal was 93,200 square feet. ▶ Each housing unit can hold 28 inmates each ▶ 3 Housing Units = 84 inmates – Current inmates housed out of county

▶ between 50-80 inmates daily The fourth space in the tower could be used for housing or for a

▶ medical unit. South Tower can be constructed with minimal disruption to the

▶ existing structure.

Re-entry Housing Unit

Re-entry step down housing – 9,345 GSF ▶ Location on the site allows for separate entry of inmates. ▶ Re-entry housing unit can be constructed in a more cost efficient

▶ manner. In addition to space for 28 male and 14 female inmates, additional

▶ space is added for re-entry and programs staff and separate courtyards for inmates participating in these programs and living in this step down housing unit. Commission Direction:

Commission Direction Staff Proposals:

Meet Immediate Needs South Tower Housing MeetMeetImmediate the Needs immediate needAdditional - BringMedical Unitfarmed space out Restore re-entry and programs space Re-entry step down housing ▶ Inmates back to Douglas County Safe Classification South Tower Housing

Sustainable Solution Construct an addition as opposed to continued housing inmates out of county or leased structures